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UNCLAS SECTION 01 OF 21 PRISTINA 000150 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
DEPT FOR G/TIP, EUR/SCE, DRL, INL, AND S/WCI, NSC FOR 
BRAUN, USUN FOR DREW SCHUFLETOWSKI, USOSCE FOR STEVE 
STEGER, OPDAT FOR ACKER 
 
E.O. 12958: N/A 
TAGS: KCRM PHUM KWMN ELAB SMIG KFRD PREF PGOV KJUS
EAID, KDEM, UNMIK, YI 
SUBJECT: KOSOVO:  SEVENTH ANNUAL TRAFFICKING IN PERSONS 
(TIP) REPORT 
 
REF: 06 STATE 202745 
 
¶1. (U) SUMMARY:  Post's submission for the Seventh Annual 
Trafficking in Persons (TIP) Report follows.  Kosovo is 
administered by the United Nations Interim Administrative 
Mission in Kosovo (UNMIK) pursuant to UN Security Council 
Resolution (UNSCR) 1244, which was adopted in 1999 following 
the NATO air strikes that ended the conflict in Kosovo.  The 
Special Representative of the UN Secretary General (SRSG) 
leads UNMIK, and the UNMIK-promulgated Constitutional 
Framework for Provisional Self-Government in Kosovo defines 
the Provisional Institutions of Self-Government (PISG), 
including the Kosovo Assembly and various ministries. 
UNMIK's gradual transition of competencies to the PISG 
accelerated in 2006, and the PISG took on greater 
responsibility for anti-trafficking, with the police 
anti-trafficking unit transitioning from UNMIK civilian 
police (Civpol) to the Kosovo Police Service (KPS) and the 
Victims' Advocacy and Assistance Unit (VAAU) moving from 
UNMIK Department of Justice to the new Ministry of Justice. 
There is a lot of work to be done and resources are limited, 
but the PISG has gotten off to a good start and has a strong 
will to tackle the trafficking problem.  END SUMMARY. 
 
Overview of Kosovo's activities to eliminate trafficking in 
persons 
 
¶2. (U) Question 27 (A): Is the country a country of origin, 
transit, or destination for internationally trafficked men, 
women, or children?  Provide, where possible, numbers or 
estimates for each group; how they were trafficked, to where, 
and for what purpose.  Does the trafficking occur within the 
country's borders?  Does it occur in territory outside of the 
government's control (e.g. in a civil war situation)?  Are 
any estimates or reliable numbers available as to the extent 
or magnitude of the problem?   What is (are) the source(s) of 
available information on trafficking in persons or what plans 
are in place (if any) to undertake documentation of 
trafficking? How reliable are the numbers and these sources? 
Are certain groups of persons more at risk of being 
trafficked (e.g. women and children, boys versus girls, 
certain ethnic groups, refugees, etc.)? 
 
¶3. (U) Kosovo is a source, transit point and destination for 
trafficked persons, and internal trafficking is a growing 
concern.  As in previous years, the identified victims were 
women and girls trafficked for the purpose of sexual 
exploitation. 
 
¶4. (U) Detailed, reliable statistics are difficult to collect 
and often misleading because organizations active in 
counter-trafficking efforts rely on different definitions of 
trafficking, employ uneven statistical analyses and overlap 
in data collection.  Moreover, the statistics that are 
available are of victims who have been identified by the 
police or, in rarer cases, gone directly to IOM or come to 
social workers, attention.  Many victims are never 
identified due to the hidden nature of the crime.  Finally, 
there is a dearth of statistics for Kosovo Serb victims. 
 
¶5. (U) The Kosovo Police Service (KPS) is one of the few PISG 
organizations operating in Kosovo Serb areas, but its 
Trafficking in Human Beings Section (THBS) has been unable to 
recruit a Kosovo Serb officer.  KPS THBS says it has 
advertised positions in the anti-trafficking unit in Serbian, 
but has not received any applications from Kosovo Serb KPS 
officers.  KPS THBS laments that it is nearly impossible to 
mount undercover operations in Kosovo Serb communities 
without a Kosovo Serb officer.  The Coordination Center for 
Kosovo and Metohija (CCK), a Serbian Government body for 
Kosovo, says it believes trafficking is a problem in Kosovo 
Serb majority areas, but it does not have any statistics. 
 
¶6. (U) Notwithstanding the challenges of collecting accurate 
 
PRISTINA 00000150  002 OF 021 
 
 
statistics, especially for Kosovo Serb areas, KPS THBS, 
Ministry of Justice Victims Advocacy and Assistance Unit 
(VAAU), and International Organization of Migration (IOM) 
statistics do illustrate the magnitude of the problem in 
Kosovo and capture important trends.  From January 1 through 
December 31, 2006, KPS THBS identified 66 victims of 
trafficking, and IOM assisted 54.  This was a slight increase 
over 2005 when KPS identified 55 victims.  Twenty of the 
victims KPS THBS identified in 2006, including eight under 
the age of 18, were Kosovars; 30 of the victims IOM assisted 
were Kosovars, including 17 minors.  While the numbers may 
not be large, there was a 150 percent increase in the number 
of locally trafficked victims IOM assisted from 2005 to 2006, 
and 2006 was the first year in which IOM assisted more 
internally trafficked than foreign victims in Kosovo. 
 
¶7. (U) For April 1, 2006 through January 31, 2007, the KPS 
reported 50 victims, 12 of whom were non-minority Kosovo 
Albanians.  The majority of the remaining 38 victims were 
Moldovan. 
 
¶8. (U) The Ministry of Justice's Victims' Advocacy and 
Assistance Unit (VAAU) reported assisting 35 victims of 
trafficking in 2006, about half of whom were internally 
trafficked, and four victims from January 1 through February 
8, 2007.  They noted that all of the internally trafficked 
victims were Kosovo Albanians. 
 
¶9. (U) From 1999 through December 31, 2006, the IOM assisted 
538 mainly international victims of trafficking.  Moldovans 
accounted for 51 percent of the victims, followed by about 20 
percent from Romania, 13 percent from Ukraine, and the rest 
from Bulgaria, Albania, Russia, Serbia, Montenegro, Slovakia 
and Nigeria.  The majority of these victims were between the 
ages of 18 and 24 years.  IOM reported that slightly more 
than 77 percent of the Kosovar victims were internally 
trafficked, while approximately 10 percent were trafficked to 
Macedonia and five percent each to Italy and Albania. 
 
¶10. (U) KPS THBS, IOM and others involved in 
counter-trafficking work in Kosovo believe that most victims 
are from families with a high level of poverty, unemployment 
and illiteracy and that trafficked minors tend to be locals 
from dysfunctional, abusive families.  Nevertheless, some 
university-educated women have fallen prey to traffickers. 
IOM statistics for 2006 indicate that 11 percent of local 
victims were not enrolled in school; 35 percent had only 
finished primary school (fifth grade); 47 percent had 
finished elementary school (ninth grade); 6  percent had 
completed secondary education (high school); and 1 percent 
had attended university.  Two percent of the foreign victims 
were not enrolled in school; 19 percent had only finished 
primary school (fifth grade); 35 percent had completed 
secondary education (high school); 38 percent had received 
vocational training; and 4 percent had gotten a university 
degree. 
 
¶11. (U) Question 27 (B): Please provide a general overview of 
the trafficking situation in the country and any changes 
since the last TIP Report (e.g. changes in direction).  Also 
briefly explain the political will to address trafficking in 
persons. Other items to address may include:  What kind of 
conditions are the victims trafficked into?  Which 
populations are targeted by the traffickers?  Who are the 
traffickers?  What methods are used to approach victims? (Are 
they offered lucrative jobs, sold by their families, 
approached by friends of friends, etc.?)  What methods are 
used to move the victims (e.g., are false documents being 
used?). 
 
¶12. (U) Victims trafficked to Kosovo continue to be almost 
exclusively women and adolescent girls from Eastern Europe, 
the Balkans and the former Soviet Union.  In 2006, KPS THBS 
identified 66 victims: 30 Moldovans, 20 Kosovars, 6 
 
PRISTINA 00000150  003 OF 021 
 
 
Albanians, 3 Ukrainians, 2 Russians, 2 Bulgarians, and 3 from 
other countries.  Statistics indicate that most Kosovar 
victims are minors, while most foreign victims are young 
women. 
 
¶13. (U) The PISG and United Nations Interim Administration 
Mission in Kosovo (UNMIK) are aware of the human trafficking 
problem and have demonstrated the political will to address 
it.  They named a national anti-trafficking coordinator and 
adopted a Kosovo Action Plan (KAP) in cooperation with many 
NGOs and international organizations.  They also created a 
secretariat in the Prime Minister's Advisory Office on Good 
 
SIPDIS 
Governance (AOGG) to support the national anti-trafficking 
coordinator and an inter-ministerial working group on 
trafficking in persons.  In 2006, they started four other 
working groups to tackle prevention, protection, prosecution, 
and trafficking in children.  They have also launched 
numerous anti-trafficking campaigns and training sessions 
under the auspices of the KAP and with the support of NGOs, 
international organizations and liaison offices. 
 
¶14. (U) The data on traffickers in unreliable, but most 
people working in the counter-trafficking field in Kosovo 
believe organized crime elements are responsible.  KPS THBS 
believes most traffickers work in small groups and recruit 
through personal contacts.  They also believe some 
traffickers are former trafficking victims who have returned 
to their countries of origin to recruit new victims.  UNMIK's 
Central Intelligence Unit (CIU) believes Kosovo Albanian and 
Kosovo Serb organized crime elements collaborate in the 
trafficking of women and that some women are trafficked from 
or through Serbia into Kosovo, where brothel owners purchase 
them.  Based on information provided by the victims it has 
assisted, IOM believes most traffickers are local men. 
 
¶15. (U) As in previous years, the majority of trafficking 
victims report that someone they knew recruited them with a 
false job offer or a false promise of marriage.  IOM reports 
that of the 538 mainly international victims it has assisted 
since 1999, 73  percent fell prey to traffickers after 
accepting a bogus job offer abroad, 4  percent claim to have 
been kidnapped, and 4  percent were promised marriage.  In 83 
 percent of cases, recruiting was through personal contacts; 
the recruiter was an acquaintance of the victim in 29 
percent of the cases, and a family friend in approximately 15 
 percent.  Recruiters were most often female. 
 
¶16. (U) Evidence obtained by the KPS THBS and 
counter-trafficking service providers indicates that 
traffickers target primarily poorly educated and economically 
disadvantaged women.  Foreign targets tend to be 18 to 24 
years old, while local targets are generally 16 to 18 years 
old.  IOM paints a very similar picture based on the 
information it has collected from victims in Kosovo.  Its 
records indicate that traffickers most often recruit poor 
women and girls from rural villages where economic 
opportunities are limited.  According to IOM, traffickers 
particularly target those who have sick family members or are 
from abusive families. 
 
¶17. (U) While there are still reports of trafficking victims 
being subjected to beatings, rape, denial of access to health 
care and confiscation of travel and identity documents, that 
trend appears to be changing.  KPS THBS, IOM and Catholic 
Relief Services (CRS) report that traffickers are 
increasingly treating victims better. They say traffickers 
are improving the victims, living conditions, granting them 
some freedom of movement, and paying them a  percentage of 
earnings.  KPS THBS even sees evidence of wire transfers from 
foreign victims to their families back home.  Nevertheless, 
IOM says most trafficking victims are sharing small motel 
rooms, and many have limited or no freedom of movement. 
 
¶18. (U) KPS THBS reports that few trafficking victims enter 
 
PRISTINA 00000150  004 OF 021 
 
 
illegally or use false documents.  Most trafficking victims 
possess valid passports and valid employment permits for work 
as waitresses and dancers.  The contracts are registered by 
Kosovo law firms and stamped by municipal authorities.  KPS 
THBS reports that some victims receive pay only for 
performing sexual services, and not for the work stated in 
their employment contracts.  IOM also says most victims have 
their documents in order, but they still find some cases of 
victims coming to Kosovo on false documents. 
 
¶19. (U) As in past years, the majority of victims are found 
working in bars and restaurants, but some counter-trafficking 
organizations report that traffickers are increasingly 
shifting the commercial sex trade into private homes and 
escort services to avoid detection, a result of KPS THBS's 
increasingly frequent bar and restaurant checks. 
 
¶20. (U) Question 27 (C): What are the limitations on the 
government's ability to address this problem in practice? 
For example, is funding for police or other institutions 
inadequate?  Is overall corruption a problem?  Does the 
government lack the resources to aid victims? 
 
¶21. (U) The hidden nature of the problem, reluctance of 
witnesses to come forward, lack of resources, and inadequate 
training of judges and prosecutors limit the PISG's ability 
to address the trafficking problem.  While post has not found 
any evidence of corruption related to trafficking cases, some 
people post interviewed believe corruption is also a problem, 
particularly at the borders.  Given the low salaries local 
law enforcement officials receive and the overall weakness of 
the rule of law, susceptibility to corruption is a concern. 
The PISG is taking a proactive approach to tackling 
corruption.  It established the Kosovo Anti-corruption Agency 
and the Police Inspectorate of Kosovo (PIK) in July 2006, and 
the Kosovo Special Prosecutors' Office (KSPO) in September 
¶2006.  The PIK is currently taking efficiency and 
effectiveness issues, but it recently hired an additional 20 
people to address police corruption issues.  Its officers 
will begin taking complaints upon completion of a six- to 
eight-week Organization of Security and Cooperation in Europe 
(OSCE)-administered training course.  The KSPO will handle 
sensitive cases, including corruption, organized crime and 
trafficking, initially under the tutelage of international 
prosecutors.  One special prosecutor began work in January 
2007, and three more will start in early 2007.  The KSPO's 
authorized strength is 10 special prosecutors. 
 
¶22. (U) KPS THBS report myriad obstacles to fighting 
trafficking.  Officers complain of women or girls whom they 
suspect of being trafficking victims denying that they are 
victims, and they suspect fear of the traffickers is to 
blame.  Witness intimidation is a serious problem in Kosovo. 
One of the trafficking shelters, the Center for Protection 
and Prevention of Victims of Trafficking in Human Beings 
(PVPT), shut down recently, partly in response to threats it 
received when its location was compromised.  It is expected 
to re-open in a new location in March 2007. 
 
¶23. (U) KPS THBS also notes that its funding is low and its 
resources are scarce, a general problem for law enforcement 
in Kosovo.  Officers complain of an inadequate budget for 
undercover operations and a need for more equipment and 
personnel.  One KPS THBS official told post that undercover 
officers are easily detected by traffickers because there is 
no budget for expenses during undercover operations and they 
sit for hours in bars and restaurants collecting intelligence 
without ordering food and drinks. 
 
¶24. (U) According to KPS THBS officials, decentralization of 
their department has also been an obstacle to effective 
undercover operations.  Since KPS THBS decentralized in 2005, 
officers say some district commanders have compromised 
undercover operations by requiring counter-trafficking 
 
PRISTINA 00000150  005 OF 021 
 
 
officers to participate in other operations for which they 
have to don uniforms and ride in marked cars.  They hope to 
remedy this situation by restoring central control to all KPS 
THBS officers. 
 
¶25. (U) KPS THBS also complains of a lack of human resources. 
 The unit is slightly under its authorized ceiling of 34 
officers and is proposing an increase to 38 officers during 
¶2007.  KPS THBS is particularly keen to recruit more female 
officers because it is easier for female officers to gain the 
trust and confidence of female trafficking victims. 
Currently, KPS THBS has female officers in Mitrovica, 
Pristina, and Prizren, but not in Ferizaj and Gjilan.  In 
2007, they hope to assign one female officer in each regional 
office and three or four female officers in the headquarters. 
 
¶26. (U) Another human resources problem is the lack of Kosovo 
Serb officers in the anti-trafficking unit.  KPS THBS 
correctly points out that it would be very difficult for a 
Kosovo Albanian officer to mount a surveillance or undercover 
operation in a suspected trafficking bar or restaurant in a 
Kosovo Serb enclave or in a Kosovo Serb majority area of 
northern Kosovo.  KPS THBS reports that it has tried to 
recruit a Kosovo Serb officer and has run vacancy 
announcements in Serbian. 
 
¶27. (U) Resources to assist trafficking victims are also 
scarce.  Catholic Relief Services noted that the Kosovo 
Action Plan (KAP) was drafted with the expectation of a donor 
conference being organized to fund the different activities 
together with the PISG.  The conference was never organized, 
and a lack of funds is preventing some of the projects from 
advancing.  CRS reports that despite the fact that many of 
the over 70 activities in the KAP have been accomplished, 
many projects in the protection pillar remain unrealized. 
 
¶28. (U) Funding for shelters is particularly inadequate.  The 
Ministry of Labor and Social Welfare (MLSW) provides some 
funding for a shelter for domestic trafficking victims, as 
well as a safe house for children and a semi-independent 
living center, both run by Hope and Homes for Children (HHC). 
 HHC also receives funding from Norwegian Church Aid and its 
parent UK NGO, also called Hope and Homes for Children.  The 
main portion of their private funding will end in 2007, and 
the director indicates that government funds are inadequate 
to manage the shelter.  In fact, HHC came dangerously close 
to having to close its doors in February 2007 because it was 
counting on money from the MLSW, whose shelter support tender 
is stalled, for its 2007 operations.  At the last minute, the 
MLSW agreed to fund Hope and Homes at the previous year's 
level until the tender can be published and competed. 
 
¶29. (U) The largest shelter for foreign victims of 
trafficking, PVPT, receives no government funding.  To date, 
most of its funding has come from IOM, OSCE and the British 
Office.  It is currently closed because of insufficient funds 
to cover its rent and the fact that its location was 
compromised and staff and residents received threats.  It 
will likely reopen in a new location in March 2007 with 
assistance from the OSCE, including reprogrammed money 
donated by the U.S. Government, but its long-term funding is 
clouded by reductions in donor funding.  The two victims who 
were in PVPT when it closed were transferred to the Interim 
Security Facility (ISF), which is run by the Ministry of 
Justice and designed to handle the most high-risk cases. 
 
¶30. (U) Question 27 (D): To what extent does the government 
systematically monitor its anti-trafficking efforts (on all 
fronts -- prosecution, prevention and victim protection) and 
periodically make available, publicly or privately and 
directly or through regional/international organizations, its 
assessments of these anti-trafficking efforts? 
 
¶31. (U) The PISG tries to systematically monitor its 
 
PRISTINA 00000150  006 OF 021 
 
 
anti-trafficking efforts and is willing to make information 
on its efforts available publicly or privately.  The PISG 
offices have been very responsive to post, always providing 
requested information in a timely manner and granting post's 
requests for meetings on trafficking-related issues.  The 
National Coordinator for Counter-trafficking in the Prime 
Minister's Advisory Office on Good Governance (AOGG) is 
responsible for coordinating and reporting on 
counter-trafficking efforts.  His secretariat issues 
bulletins every three months and organized a one-day 
conference in December 2006 on implementation of the Kosovo 
Action Plan (KAP), but some have criticized it for only 
reporting on activities, and not assessing implementation of 
the KAP.  The USAID-funded Partnership against Trafficking in 
Human Beings (PATH) project will assess KAP implementation in 
¶2007. 
 
¶32. (U) Another effort at monitoring anti-trafficking efforts 
is the KPS THBS yearly report on trafficking in human beings, 
which was issued for the first time in 2006 after the KPS 
THBS gained full competency for anti-trafficking work from 
UNMIK Police.  The report analyzes trends and gives a good 
snapshot of the trafficking situation, but the KPS does not 
attempt to assess its own efforts, presumably because this 
would have to be done by an independent body. 
 
Prevention 
 
¶33. U) Question 28 (A): Does the government acknowledge that 
trafficking is a problem in the country?  If not, why not? 
 
¶34. (U) The PISG and UNMIK acknowledge that trafficking in 
persons is a problem in Kosovo, and they are trying to tackle 
the issue. 
 
¶35. (U) Question 28 (B): Which government agencies are 
involved in anti-trafficking efforts and which agency, if 
any, has the lead? 
 
¶36. (U) The national coordinator for counter-trafficking in 
the Prime Minister's Advisory office on Good Government 
(AOGG) has the lead on anti-trafficking work and is supported 
by a small secretariat.  Other agencies involved in 
counter-trafficking work include the Ministries of Education, 
Sports and Technology (MEST); Culture, Youth and Sports; 
Interior; Justice; Labor and Social Welfare; Health; Public 
Services; Local Government; Finance; Trade and Industry; and 
Communities and Returns.  International organizations and 
NGOs also play a very active role in counter-trafficking 
efforts in Kosovo. 
 
¶37. (U) Kosovo also has an inter-ministerial working group on 
trafficking issues, which is tasked with designing, 
implementing and monitoring the KAP and includes members of 
the PISG, UNMIK, international organizations and NGOs.  In 
2006, the Inter-Ministerial Working Group established 
sub-working groups on prevention, protection, prosecution, 
and trafficking in children. 
 
¶38. (U) Question 28 (C): Are there, or have there been, 
government-run anti-trafficking information or education 
campaigns?  If so, briefly describe the campaign(s), 
including their objectives and effectiveness.  Do these 
campaigns target potential trafficking victims and/or the 
demand for trafficking (e.g. "clients" of prostitutes or 
beneficiaries of forced labor)? 
 
¶39. (U) Most anti-trafficking campaigns have been run by 
international organizations and NGOs with the PISG's support 
and under the auspices of the Kosovo Action Plan (KAP).  The 
national counter-trafficking coordinator said Kosovo focused 
mostly on prevention in 2006, launching an anti-trafficking 
website, awareness campaigns against trafficking aimed at 
children and young girls, and a network of young 
 
PRISTINA 00000150  007 OF 021 
 
 
anti-trafficking &ambassadors.8  Prism Research conducted a 
study in 2006 and 2007 to learn more about who the clients 
are so anti-trafficking campaigns can begin to target them. 
Catholic Relief Services commissioned the Prism study as part 
of the USAID-funded Partnership against Trafficking in Human 
Beings (PATH) project. 
 
¶40. (U) The anti-trafficking website is in English, Albanian 
and Serbian and can be accessed at 
http://www.antitrafficking-kosovo.org/en/.  The AOGG 
maintains it, and it offers a wealth of information on 
anti-trafficking activities, laws, resources and contacts. 
 
¶41. (U) The prevention campaigns included two that the 
Ministry of Education, Science and Technology (MEST) and AOGG 
undertook jointly to circulate informational brochures in 
primary and secondary schools and introduce 
counter-trafficking information in school curricula.  (Note: 
While the national counter-trafficking coordinator was 
certain that these campaigns reached everyone in the 
PISG-controlled schools, he could not confirm whether they 
reached Kosovo Serb students in the parallel education system 
controlled by Belgrade.  He said the materials were sent to 
officials in the affected municipalities with a request that 
they be introduced in the schools.  The Coordination Center 
of Serbia and for Kosovo and Metohija (CCK) also could not 
confirm whether these materials reached Kosovo Serb students, 
but said counter-trafficking curricula from Belgrade had been 
introduced in the schools.  End note) 
 
¶42. (U) The AOGG also collaborated on two innovative projects 
to reach broader audiences, a film called &Recruiter8 and a 
regional counter-trafficking bicycle tour.  &Recruiter8 is 
a film designed to prevent women and girls from falling prey 
to traffickers.  It aired on Kosovo television and officially 
premiered in Pristina in February 2007.  The bicycle tour was 
an initiative of the national counter-trafficking 
coordinators of Kosovo, Albania, Romania, Bulgaria and 
Macedonia, with the support of the Government of Norway. 
National teams of anti-trafficking activists toured the 
countries to raise awareness of the trafficking issue, and 
organized events in each of the capitals, including a meeting 
of the national coordinators and teams. 
 
¶43. (U) Another AOGG-supported initiative was the 
anti-trafficking ambassadors program.  The AOGG trained a 
group of young human rights and anti-trafficking 
"ambassadors" in August and September 2006, and sent them on 
a tour of Kosovo to host debates on human rights and 
trafficking issues.  The program succeeded in spreading the 
anti-trafficking message throughout Kosovo and the 
ambassadors even became interested and active in other KAP 
activities.  The program concluded in late 2006, but the 
national counter-trafficking coordinator said he hopes to 
reactivate it in 2007. 
 
¶44. (U) The International Organization of Migration (IOM) 
also ran counter-trafficking campaigns in 2006 and early 
¶2007.  Its &I Decide for Myself8 awareness-raising 
campaign, launched in July 2005, continued to deliver the 
counter-trafficking message to the general public.  As part 
of the campaign, the NGO "Integra" showed the film &People 
of the Road8 at 10 schools in Kosovo, implemented a 
six-month broadcasting campaign with radio spots and programs 
in minority languages, presented the documentary film &Dying 
to Escape,8 and distributed informational leaflets at the 
Pristina Book Fair.  From May 2005 to June 2006, it ran a 
&Stop! Trafficking in Human Beings8 campaign in cooperation 
with AOGG, which included the commission of a song, 
broadcasts on RTK, KTV and TV21, print advertising in Koha 
Ditore, billboards in Serbian and Albanian in major towns, 
and the distribution of leaflets, T-shirts and bags with its 
logo. 
 
 
PRISTINA 00000150  008 OF 021 
 
 
¶45. (U) Finally, IOM and the Ministry of Justice sponsor 
anti-trafficking hotlines.  IOM reported little success with 
its hotline, which is run by a local NGO.  From December 2005 
through December 2006, they received 25,855 calls; 22,645 
callers were curious about what the hotline was, 232 asked 
for information about trafficking, 24 reported having been 
trafficked, and 184 reported concern for someone they 
suspected or knew had fallen victim of trafficking.  The 
Ministry of Justice hotline has reportedly been more 
successful.  The VAAU told Catholic Relief Services (CRS) 
that it received 1,000 calls between November 2005 and 
September 2006, 430 of which were referred to KPS THBS for 
response and 200 of which were referred to victims' 
advocates.  The remaining 370 calls were reportedly of an 
informational nature. 
 
¶46. (U) Question 28 (D): Does the government support other 
programs to prevent trafficking? (e.g., to promote women's 
participation in economic decision-making or efforts to keep 
children in school.)  Please explain. 
 
¶47. (U) The PISG, in cooperation with NGOs and international 
organizations, has other campaigns to encourage promotion of 
women's participation in economic decision-making and 
discourage children from dropping out of school, which might 
help prevent women and girls from falling prey to traffickers 
since statistics indicate that most trafficking victims have 
little education and are economically disadvantaged.  The 
Prime Minister's advisor on equal opportunity and gender 
issues and the Ministry of Education run these campaigns. 
 
¶48. (U) Question 28 (E): What is the relationship between 
government officials, NGOs, other relevant organizations and 
other elements of civil society on the trafficking issue? 
 
¶49. (U) There is very good cooperation on the trafficking 
issue among PISG officials, NGOs, international organizations 
and other elements of civil society in Kosovo.  They 
regularly consult on developing and implementing 
trafficking-related protocols, such as the Standard Operating 
Procedures (SOP) for dealing with victims of trafficking. 
They also cooperate very closely on providing assistance to 
victims.  Aside from the Interim Security Facility (ISF) for 
high-risk trafficking victims, all shelters are managed by 
local NGOs and partially funded by the MLSW.  Moreover, NGOs 
and international organizations fully participated in 
drafting the KAP and serve on the Inter-Ministerial Working 
Group on trafficking issues, which is responsible for 
designing, implementing and monitoring the KAP. 
 
¶50. (U) Question 28 (F): Does the government monitor 
immigration and emigration patterns for evidence of 
trafficking?  Do law enforcement agencies screen for 
potential trafficking victims along borders? 
 
¶51. (U) KPS monitors immigration patterns for evidence of 
trafficking.  Foreigners staying in Kosovo more than 90 days 
are required to register with the Office of Foreign 
Registration (OFR) unless they are employees of KFOR, 
international organizations or foreign liaison offices.  KPS 
THBS coordinates closely with the OFR to identify potential 
trafficking victims and subsequently interview them.  When 
they do bar/restaurant checks, KPS THBS officers particularly 
look for women and girls that have been classified as at-risk 
through OFR records checks. 
 
¶52. (U) KPS Border/Boundary Police officers also report that 
they routinely look for potential victims of trafficking 
entering Kosovo's border and boundary gates and the Pristina 
Airport.  When they suspect a woman or girl may be a victim 
or potential victim of trafficking, they separate her from 
others with whom she is traveling in order to question her, 
warn her of the risks of trafficking and give her information 
on what to do if she becomes a victim of trafficking.  Border 
 
PRISTINA 00000150  009 OF 021 
 
 
police cooperate closely with KPS THBS. 
 
¶53. (U) KPS THBS says it is also monitoring emigration 
patterns to try to understand possible criminal networks 
trafficking women and girls from Kosovo to other European 
countries.  It works closely with Border/Boundary Police on 
this. 
 
¶54. (U) Question 28 (G): Is there a mechanism for 
coordination and communication between various agencies, 
internal, international, and multilateral on 
trafficking-related matters, such as a multi-agency working 
group or a task force?  Does the government have a 
trafficking in persons working group or single point of 
contact?  Does the government have a public corruption task 
force? 
 
¶55. (U) The national coordinator for counter-trafficking in 
the Prime Minister's Advisory Office for Good Governance 
(AOGG) coordinates communication among counter-trafficking 
actors in Kosovo, including the relevant ministries, NGOs and 
international organizations.  The national 
counter-trafficking coordinator has a secretariat and chairs 
an inter-ministerial working group on counter-trafficking, 
which designs, implements and monitors the Kosovo Action Plan 
(KAP) on trafficking.  There are also sub-working groups on 
prevention, protection, prosecution and trafficking in 
children. 
 
¶56. (U) The PISG does not have a public corruption task 
force, but it established the Kosovo Anti-corruption Agency 
on July 17, 2006.  Since it is a fledgling institution, it is 
too soon to assess its efficacy.  The PISG also established 
the Police Inspectorate of Kosovo (PIK) in July 2006 and the 
Kosovo Special Prosecutors' Office (KSPO) in September 2006. 
The PIK is currently addressing efficiency and effectiveness 
issues in the KPS, but will start to investigate corruption 
and other misconduct issues following training of 20 new 
hires by the OSCE in early 2007.  The KSPO's mandate is to 
handle sensitive cases, including corruption, organized crime 
and trafficking, initially under the tutelage of 
international prosecutors.  The KSPO is authorized to hire 10 
special prosecutors.  One prosecutor started in January 2007 
and another three are due to begin work in early 2007. 
 
¶57. (U) Question 28 (H): Does the government have a national 
plan of action to address trafficking in persons?  If so, 
which agencies were involved in developing it?  Were NGOs 
consulted in the process?  What steps has the government 
taken to disseminate the action plan? 
 
¶58. (U) Kosovo has a national plan to address trafficking in 
persons, the &Kosovo Action Plan to Combat Trafficking in 
Persons,8 or KAP.  It was adopted on May 17, 2005 and will 
expire in 2007.  Plans are underway for a successor plan. 
All of the relevant ministries were involved in drafting the 
plan, except the Ministries of Justice and Interior, which 
were created after the plan.  International organizations, 
NGOs and civil society representatives also participated in 
the process.  In August 2005, the plan was publicly presented 
by the actors involved in its creation.  It has been widely 
distributed and posted on the anti-trafficking website. 
 
Investigation and Prosecution of Traffickers 
 
¶59. (U) Question 29 (A): Does the country have a law 
specifically prohibiting trafficking in persons--both for 
sexual and non-sexual purposes (e.g. forced labor)?  If so, 
please specifically cite the name of the law and its date of 
enactment.  Does the law(s) cover both internal and external 
(transnational) forms of trafficking? If not, under what 
other laws can traffickers be prosecuted?  For example, are 
there laws against slavery or the exploitation of 
prostitution by means of force, fraud or coercion?   Are 
 
PRISTINA 00000150  010 OF 021 
 
 
these other laws being used in trafficking cases?  Are these 
laws, taken together,  adequate to cover the full scope of 
trafficking in persons? Please provide a full inventory of 
trafficking laws, including non-criminal statutes that allow 
for civil penalties against alleged trafficking crimes, 
(e.g., civil forfeiture laws and laws against illegal debt. 
 
¶60. (U) The Provisional Criminal Code of Kosovo (PCCK) or 
UNMIK/REG/2003/25, which came into effect on April 6, 2004, 
covers internal and external trafficking, as well as myriad 
activities related to trafficking.  Its provisions include 
Article 137 on slavery and forced labor, Article 139 on 
trafficking in persons, Article 140 on withholding identity 
papers of trafficking victims, Article 201 on facilitating 
prostitution, Article 183 on violating employment rights, 
Article 193 on rape, Article 195 on sexual assault, Article 
196 on degradation of sexual integrity, Article 236 on misuse 
of economic authorizations, Article 274 on organized crime, 
Article 303 on failure to report preparation of criminal 
offenses, Article 304 on failure to report criminal offenses 
or perpetrators of criminal offenses, Article 305 on 
providing assistance to perpetrators after the commission of 
criminal offenses, and Article 310 on intimidation during 
criminal proceedings for organized crime. 
 
¶61. (U) The PCCK is sophisticated legislation for the region 
and adequately covers trafficking and trafficking-related 
crimes, but some believe it is under-implemented.  The Kosovo 
Police Service Trafficking in Human Beings Section (KPS THBS) 
says some prosecutors still lack awareness of the use of the 
instruments now available during investigative and trial 
phases.  At times, the KPS THBS reports that it has had to 
insist on the application of such measures. 
 
¶62. (U) There have also been some unintended consequences of 
PCCK Articles and UNMIK Regulations that were meant to curb 
trafficking and protect victims.  For example, under UNMIK 
Regulation 2001/4, trafficking victims are not required to 
testify against their exploiters in order to receive 
assistance and are entitled to repatriation without delay. 
Consequently, some victims leave Kosovo before their 
traffickers go to trial.  UNMIK Regulation 2005/16 requires 
documentation from would-be workers in Kosovo.  It has helped 
Border and Boundary Police officers identify and curb 
trafficking at border entry points, but the KPS, 
international organizations and NGOs report that it has led 
traffickers to use more clandestine means of entry or to 
provide the victims with employment contracts for work as 
waitresses or dancers.  Finally, Article 139 provides for 
prosecution of persons who knowingly use or procure the 
sexual services of a victim of trafficking.  While this is 
meant to punish clients of trafficking victims, it is not the 
deterrent it was intended to be because it is very difficult 
to prove that a client knew he or she was procuring the 
services of a trafficking victim. 
 
¶63. (U) Anti-trafficking is a priority under the Rule of Law 
standard of the &Standards for Kosovo8 and companion 
document, the Kosovo Standards Implementation Plan, which was 
drafted in coordination with the international community and 
which outlines items Kosovo must achieve to become a 
multi-ethnic, democratic, functioning entity.  Kosovo has not 
yet met these standards, but it has made considerable 
progress this year. 
 
¶64. (U) Question 29 (B): What are the penalties for 
trafficking people for sexual exploitation? 
 
¶65. (U) PCCK Article 139 on trafficking in persons provides 
for two to 12 years imprisonment for engaging in trafficking 
in persons (three to 15 years if the victim is a minor), 
seven to 20 years plus a fine of up to 500,000 euros for 
organizing a group to commit the offense, six months to five 
years for negligently facilitating trafficking in persons, 
 
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three months to five years for procuring sexual services of a 
known trafficking victim (two to 10 years if the victim is 
under the age of 18).  These sentences are greater if 
committed by an official.  Under Article 139, an official 
would receive five to 15 years in prison for engaging in 
trafficking, at least ten years for organizing a group to 
commit the offense, and two to seven years for negligently 
facilitating trafficking in persons or procuring sexual 
services of a trafficking victim (five to 12 years if the 
victim was a minor). 
 
¶66. (U) Question 29 (C): Punishment of Labor Trafficking 
Offenses: What are the prescribed and imposed penalties for 
trafficking for labor exploitation, such as forced or bonded 
labor and involuntary servitude?  Do the government's laws 
provide for criminal punishment -- i.e. jail time -- for 
labor recruiters in  labor source countries who engage in 
recruitment of laborers using knowingly fraudulent or 
deceptive offers that result in workers being exploited in 
the destination country?  For employers or labor agents in 
labor destination countries who confiscate workers' passports 
or travel documents, switch contracts without the worker's 
consent as a means to keep the worker in a state of service, 
or withhold payment of salaries as means of keeping the 
worker in a state of service?  If law(s) prescribe criminal 
punishments for these offenses, what are the actual 
punishments imposed on persons convicted of these offenses? 
 
¶67. (U) PCCK Article 137 on establishing slavery, 
slavery-like conditions and forced labor provides for 
imprisonment of two to 10 years for general cases, three to 
10 years if the perpetrator has a domestic relationship with 
the victim, three to 15 years if the victim is a child, and 
five to 12 years if the perpetrator is an official (five to 
20 years if the victim is a child). 
 
¶68. (U) PCCK Article 140 provides for punishment of one to 
five years imprisonment for withholding identification 
documents of victims of trafficking.  If the perpetrator is 
an official in the exercise of his or her duties, the 
punishment is three to seven years imprisonment. 
 
¶69. (U) Trafficking in persons for other than sexual 
exploitation is rare in Kosovo, and USOP was unable to obtain 
statistics on imposed punishments for forced labor and 
involuntary servitude.  USOP prosecutorial and judicial 
contacts did not recall such cases ever being tried in Kosovo. 
 
¶70. (U) Question 29 (D): What are the prescribed penalties 
for rape or forcible sexual assault?  How do they compare to 
the prescribed and imposed penalties for crimes of 
trafficking for commercial sexual exploitation? 
 
¶71. (U) PCCK Article 193 covers rape and forcible sexual 
assault.  It provides for prison sentences of: two to 10 
years imprisonment for rape (five to 20 years if the victim 
is under 16); three to 10 years if the victim is unprotected 
or his or her security is in danger; five to 15 years if the 
victim is tortured or injured or if a dangerous weapon is 
used, if the perpetrator has caused the victim to become 
intoxicated, if the offense is committed by more than one 
person, or if the perpetrator knows the victim is vulnerable 
because of age, a handicap, illness or pregnancy, or if the 
perpetrator has a domestic relationship with a victim between 
the ages of 16 and 18; and five to 20 years if the 
perpetrator has a domestic relationship with a victim under 
the age of 16.  If the victim dies, the minimum sentence is 
10 years in prison. 
 
¶72. (U) USOP was unable to obtain statistics on rape cases. 
 
¶73. (U) Question 29 (E): Is prostitution legalized or 
decriminalized? Specifically, are the activities of the 
prostitute criminalized?  Are the activities of the brothel 
 
PRISTINA 00000150  012 OF 021 
 
 
owner/operator, clients, pimps, and enforcers criminalized? 
Are these laws enforced?  If prostitution is legal and 
regulated, what is the legal minimum age for this activity? 
Note that in many countries with federalist systems, 
prostitution laws may be covered by state, local, and 
provincial authorities. 
 
¶74. (U) 
Voluntary prostitution is a minor offense under the Kosovo 
Law on Public Peace and Order Article 18(6), and the law 
punishes the prostitute, but not the client.  The prostitute 
may receive up to 60 days in jail and, if foreign, face 
deportation.  A client may only be punished under PCCK 
Article 139 if he or she knowingly procures the services of a 
trafficking victim, and it is almost impossible to prove that 
a client had such knowledge. 
 
¶75. (U) Under PCCK Article 201, providing the premises for 
prostitution or recruiting, organizing or assisting a person 
with the crime of prostitution is punishable by a fine or 
imprisonment of up to three years.  If prostitution is 
practiced within a 350-meter radius of a school or other 
locality used by children, the facilitator may receive six 
months to five years in prison.  Facilitating prostitution 
for someone between the ages of 16 and 18 in punishable by 
one to 10 years imprisonment, and doing so for someone under 
the age of 16 is punishable by one to 12 years imprisonment. 
 
¶76. (U) Question 29 (F): Has the government prosecuted any 
cases against traffickers?  If so, provide numbers of 
investigations, prosecutions, convictions, and sentences, 
including details on plea bargains and fines, if relevant and 
available.  Does the government in a labor source country 
criminally prosecute labor recruiters who recruit laborers 
using knowingly fraudulent or deceptive offers or impose on 
recruited laborers inappropriately high or illegal fees or 
commissions that create a debt bondage condition for the 
laborer?  Does the government in a labor destination country 
criminally prosecute employers or labor agents who confiscate 
workers' passports/travel documents, switch contracts or 
terms of employment without the worker's consent, use 
physical or sexual abuse or the threat of such abuse to keep 
workers in a state of service, or withhold payment of 
salaries as a means to keep workers in a state of service? 
Are the traffickers serving the time sentenced: If not, why 
not?  Please indicate whether the government can provide this 
information, and if not, why not? (Note: complete answers to 
this section are essential. End Note) 
 
¶77. (U) From April 1, 2006 to January 31, 2007, the KPS 
mounted 99 anti-trafficking operations, 34 of which were 
undercover.  They arrested 28 people on trafficking charges, 
and identified 50 victims.  Twelve of the victims were 
Kosovar Albanians; the rest of the victims were foreigners, 
and mostly from Moldova.  The KPS THBS also checked 1,121 
premises suspected of trafficking in persons during this 
period, and closed 14 of them. 
 
¶78. (U) In 2006, the Kosovo judiciary worked on 42 
trafficking in persons-related cases, 27 of which were 
unresolved cases from previous years.  During the year, 14 
cases were completed, resulting in 18 convictions.  Fifteen 
of the convicts received prison terms and three received 
suspended sentences.  The prison terms ranged from four 
months to nine years, but most were one year or less.  Two 
traffickers served six months of a one-year sentence, and one 
served one year of a two-year sentence.  Three traffickers 
received fines in addition to their sentences; one for 600 
euros and two for 100 euros each. 
 
¶79. (U) A weak witness protection system, inadequate training 
of prosecutors and a lack of technical equipment for 
undercover operations during the early part of the year 
contributed to the low rate of prosecution.  Victims 
 
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returning to their homes without testifying against their 
traffickers or refusing to testify against their traffickers 
further weakened prosecutions.  (Note: The United States 
Government provided the KPS THBS some technical equipment for 
undercover operations in July 2006.) 
 
¶80. (U) There is no evidence to suggest that Kosovo is a 
source or destination for forced laborers. KPS THBS reports 
that no forced labor cases came to their attention in 2006. 
UNICEF says that media reports surfaced about children being 
trafficked to Kosovo for begging during the year, but they 
found no evidence to support the allegations.  Instead, they 
found children who came to Kosovo with their families and 
were begging out of economic necessity. 
 
¶81. (U) Question 29 (G): Is there any information or reports 
of who is behind the trafficking?  For example, are the 
traffickers freelance operators, small crime groups, and/or 
large international organized crime syndicates?  Are 
employment, travel, and tourism agencies or marriage brokers 
fronting for traffickers or crime groups to traffic 
individuals?  Are government officials involved?  Are there 
any reports of where profits from trafficking in persons are 
being channeled?  (e.g. armed groups, terrorist 
organizations, judges, banks, etc.) 
 
¶82. (U) KPS, UNMIK Civpol, international organizations and 
NGOs believe organized crime groups are behind some of the 
trafficking in persons in Kosovo, and UNMIK police think a 
coordinated effort exists between Kosovo Serb and Kosovo 
Albanian criminal elements.  Based on information from the 
victims it assists, IOM believes the majority of traffickers 
are local men.  KPS THBS has noticed a trend of women 
entering Kosovo with valid employment contracts for work as 
waitresses or dancers, registered by municipalities and 
stamped by municipal authorities.  KPS THBS believes most 
traffickers work in small groups through personal contacts, 
but anti-trafficking officers also suspect that initial 
victims of trafficking are returning to their countries of 
origin and becoming recruiters.  KPS THBS sees no evidence of 
employment, travel and tourism agencies or marriage brokers 
fronting for traffickers or crime groups to traffic 
individuals. 
 
¶83. (U) Post is unaware of any reports of government 
officials being involved in trafficking or of trafficking 
proceeds being channeled to armed groups, terrorist 
organizations or judges.  Nevertheless, there are no specific 
reports of where profits from trafficking are channeled, 
aside from informal reports from the KPS THBS that they see 
evidence of wire transfers from victims to their families 
abroad.  Trafficking in Kosovo tends to be a cash business, 
and inadequate compliance and enforcement of money laundering 
legislation make it difficult for the police to monitor money 
transfers. 
 
¶84. (U) Question 29 (H): Does the government actively 
investigate cases of trafficking?  (Again, the focus should 
be on trafficking cases versus migrant smuggling cases.) Does 
the government use active investigative techniques in 
trafficking in persons investigations?  To the extent 
possible under domestic law, are techniques such as 
electronic surveillance, undercover operations, and mitigated 
punishment or immunity for cooperating suspects used by the 
government?  Does the criminal procedure code or other laws 
prohibit the police from engaging in covert operations? 
 
¶85. (U) The KPS THBS, which gained full competency for 
counter-trafficking from UNMIK Police on April 15, 2006, 
actively investigates trafficking cases.  Since transition, 
the number of bar checks has increased dramatically, and the 
number of bar closures has increased slightly.  In addition 
to bar checks, the KPS THBS use techniques such as mitigated 
punishment or immunity for cooperating suspects, electronic 
 
PRISTINA 00000150  014 OF 021 
 
 
surveillance and undercover operations, which are permissible 
under Kosovo law.  Electronic surveillance is an extreme 
measure and may only be employed when other investigative 
efforts fail.  It requires a court order, and KPS THBS 
complained of at least one case of a judge refusing to grant 
a request they believed was fully justified.  They are 
continuing to press that judge and attempting to provide 
additional information to bolster their request.  From April 
1, 2006 through January 31, 2007, the KPS THBS conducted 99 
counter-trafficking operations, 34 of which were undercover, 
and premise checks on 1,121 locations. 
 
¶86. (U) Question 29 (I): Does the government provide any 
specialized training for government officials in how to 
recognize, investigate, and prosecute instances of 
trafficking? 
 
¶87. (U) The PISG provides training on recognizing and 
investigating trafficking in persons.  KPS THBS officers 
provide specialized training to recruits at the Kosovo Police 
Service School (KPSS), Border and Boundary Police officers, 
and organized crime investigators.  They also give more 
comprehensive courses to KPS officers attending the basic and 
advanced techniques courses at KPSS.  The KPS THBS Chief 
provided the KPS Training Center and Police Academy with a 
lesson plan compiled by Balkan experts at the initiative of 
the International Center for Migration Policy Development 
(ICMPD) and United Nations Development Program (UNDP). 
Thanks to this lesson plan, officers get Balkans-specific 
training on the trafficking issue and investigation 
approaches.  In 2006, KPS THBS officers gave 10 training 
sessions at the KPSS to police recruits and officers 
attending investigations techniques courses.  They also gave 
9 trainings to Border and Boundary Police officers, 6 
trainings to investigators of other units.  KPS THBS's deputy 
head took part in finalizing a project for training 
counter-trafficking officers that UNDP and ICMPD organized. 
 
¶88. (U) In addition to giving training to other officers, KPS 
THBS officers took part in three regional trainings on 
trafficking victims, issues and in training on the standard 
operating procedure (SOP) for processing victims, which 
various counter-trafficking organizations agreed upon under 
the Kosovo Action Plan (KAP).  KPS THBS officers also 
attended specialized sessions on investigative techniques 
organized by the Organized Crime Training Network (OCTN) in 
Croatia, Montenegro and Kosovo, and participated in an 
IOM-organized study visit to Hungary and Albania. 
 
¶89. (U) The Border and Boundary Police are due to take over 
counter-trafficking work along the borders and administrative 
boundary lines once the proposed Law on the Border Police 
takes effect, and they would like to receive even more 
in-depth training.  Post is evaluating their request for U.S. 
Government assistance with this training. 
 
¶90. (U) A number of international and national training 
organizations also provide comprehensive training programs on 
trafficking in persons to Kosovo judges and prosecutors.  The 
Kosovo Judicial Institute, the primary national training 
organization, dedicates a significant portion of its 
induction training to trafficking in persons.  The United 
States Department of Justice, Council of Europe, OSCE and 
other international organizations provide specialized 
training programs for judges and prosecutors on different 
aspects of trafficking in persons.   Many involved in 
counter-trafficking work say that judges and prosecutors can 
still use more training. 
 
¶91. (U) In early 2006, IOM and the national coordinator for 
counter-trafficking's secretariat conducted training to 
enhance Kosovo's institutional capacity to implement the KAP. 
 KAP implementing partners also conducted training on the 
Standard Operating Procedures (SOP) for all actors involved 
 
PRISTINA 00000150  015 OF 021 
 
 
in identification of and assistance to trafficking victims in 
2006 and early 2007. 
 
¶92. (U) Question 29 (J): Does the government cooperate with 
other governments in the investigation and prosecution of 
trafficking cases? If possible, can post provide the number 
of cooperative international investigations on trafficking? 
 
¶93. (U) In 2006, international cooperation declined, largely 
due to Kosovo's unique status preventing it from joining 
international organizations such as Interpol, Europol and the 
Southeast European Cooperative Initiative (SECI).  KPS THBS 
reported that international cooperation was better when they 
were under UNMIK.  They had bi-monthly meetings with the 
Serbian Ministry of Interior, as well as good coordination 
and contact with neighboring countries, Interpol and Europol. 
 KPS THBS says it continues to provide requested information 
to international organizations and foreign governments, but 
says it does not see a two-way flow of information.  KPS THBS 
reported that cooperation from April 1, 2006 to the present 
has been mostly thanks to collegial relations officers gained 
from various trainings.  Albania and Moldova were the 
exception.  Albania cooperated very closely and effectively 
through the Albanian Liaison Office, and the KPS THBS were 
able to free six Moldovan females thanks to a tip from a 
Moldovan police officer. 
 
¶94. (U) The national counter-trafficking coordinator reports 
good cooperation with national counter-trafficking 
coordinators from neighboring countries.  In particular, he 
cited work with national counter-trafficking coordinators 
from Macedonia, Albania, Romania and Bulgaria to raise 
awareness of anti-trafficking issues in 2006.  He said they 
have also held meetings to exchange information. 
 
¶95. (U) Since the majority of foreign trafficking victims 
identified in Kosovo come from Moldova, Kosovo's national 
counter-trafficking coordinator is particularly interested in 
inviting the Moldovan national counter-trafficking 
coordinator to Pristina to discuss ways to tackle the 
problem.  He asked the U.S. Government for financial 
assistance for this project, and Post is considering the 
request in light of its overall anti-trafficking assistance 
priorities. 
 
¶96. (U) Question 29 (K): Does the government extradite 
persons who are charged with trafficking in other countries? 
If so, can post provide the number of traffickers extradited? 
 Does the government extradite its own nationals charged with 
such offenses?   If not, is the government prohibited by law 
form extraditing its own nationals?  If so, is the government 
doing to modify its laws to permit the extradition of its own 
nationals? 
 
¶97. (U) Kosovo is unable to enter into formal extradition 
treaties because it lacks status as a sovereign state. 
Nevertheless, UNMIK has been able to enter into international 
agreements to transfer Kosovars to other countries on a 
case-by-case basis, and is able to extradite foreign 
nationals under UN Security Council Resolution 1244. 
According to UNMIK, there have been eight cases of 
extradition to foreign countries, involving 11 people, since 
the end of the conflict in 1999. 
 
¶98. (U) Question 29 (L): Is there evidence of government 
involvement in or tolerance of trafficking, on a local or 
institutional level? If so, please explain in detail. 
 
¶99. (U) Post is unaware of any evidence of government 
involvement in or tolerance of trafficking on a local or 
institutional level.  Nevertheless, KPS THBS has reported 
that foreign trafficking victims often arrive in Kosovo with 
valid documents and employment contracts registered by local 
attorneys and stamped by municipal authorities.  They believe 
 
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the attorneys and local authorities may be aware that the 
girls are being trafficked into Kosovo to work as 
prostitutes, despite the fact that the traffickers are asking 
them to draft and register employment contracts stating the 
girls will be waitresses or dancers. 
 
¶100. (U) Question 29 (M): If government officials are 
involved in trafficking, what steps has the government taken 
to end such participation?  Have any government officials 
been prosecuted for involvement in trafficking or 
trafficking- related corruption?  Have any been convicted? 
What sentence(s) was imposed?  Please provide specific 
numbers, if available. 
 
¶101. (U) Post has found no evidence of government officials 
being involved in trafficking during this reporting period. 
Nevertheless, the PISG is aware that susceptibility to 
corruption is a problem in Kosovo due in particular to the 
low salaries local law enforcement officials receive.  In 
2006, the PISG established three government bodies whose 
mandates include anti-corruption work: the Police 
Inspectorate of Kosovo (PIK), the Kosovo Special Prosecutors' 
Office (KSPO) and the Kosovo Anti-Corruption Agency.  (See 
paragraphs 21 and 56.)  They are fledgling institutions, so 
it is too early to address their efficacy. 
 
¶102. (U) Question 30 (N): If the country has an identified 
child sex tourism problem (as source or destination), how 
many foreign pedophiles has the government prosecuted or 
deported/extradited to their country of origin?  What are the 
countries of origin for sex tourists?  Do the country's child 
sexual abuse laws have extraterritorial coverage (similar to 
the U.S. PROTECT Act)?  If so, how many of the country's 
nationals have been prosecuted and/or convicted under the 
extraterritorial provision(s)? 
 
¶103. (U) Post has not found any evidence, anecdotal or 
otherwise, of a child sex tourism problem in Kosovo. 
 
¶104. (U) Has the government signed, ratified, and/or taken 
steps to implement the following international instruments? 
Please provide the date of signature/ratification if 
appropriate. 
 
--ILO Convention 182 concerning the Prohibition and Immediate 
Action for the Elimination of the Worst Forms of Child Labor. 
--ILO Convention 29 and 105 on Forced or Compulsory Labor. 
--The Optional Protocol to the Convention on the Rights of 
the Child (CRC) on the Sale of Children, Child Prostitution, 
and Child Pornography. 
--The Protocol to Prevent, Suppress and Punish Trafficking in 
Persons, especially Women and Children, supplementing the UN 
Convention Against Transnational Organized Crime. 
 
¶105. (U) Kosovo is not a sovereign state and therefore not a 
party to international instruments.  As a UN-administered 
entity, it recognizes international covenants to which the UN 
is a signatory.  The Constitutional Framework states the 
&PISG shall observe and ensure internationally recognized 
human rights and fundamental freedoms8 and lists 
international conventions on human rights, including: The 
Universal Declaration of Human Rights; the European 
Convention for the Protection of Human Rights and Fundamental 
Freedoms and its protocols; the International Covenant on 
Civil and Political Rights and the protocols thereto; the 
Convention on the Elimination of All Forms of Racial 
Discrimination; the Convention on the Elimination of All 
Forms of Discrimination Against Women; and the Convention on 
the Rights of the Child.  UNMIK regulations state that all 
persons exercising public duties or holding public office are 
bound by internationally recognized human rights standards. 
 
¶106. (U) According to the International Labor Organization 
(ILO), Convention 182 applies to Kosovo, and the Ministry of 
 
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Labor and Social Welfare has committed itself to eliminating 
the worst forms of child labor by signing a memorandum of 
understanding with ILO on the implementation of ILO's 
International Program on the Elimination of Child Labor 
(IPEC). 
 
Protection and Assistance to Victims 
 
¶107. (U) Question 30 (A): Does the government assist victims, 
for example, by providing temporary to permanent residency 
status, relief from deportation, shelter and access to legal, 
medical and psychological services?  If so, please explain. 
Does the country have victim care and victim health care 
facilities? Does the country have facilities dedicated to 
helping victims of trafficking?  If so, can post provide the 
number of victims placed in these care facilities? 
 
¶108. (U) Protection and assistance to trafficking victims are 
governed by the Standard Operating Procedures (SOPs) that 
UNMIK, the PISG, international organizations and NGOs 
developed for foreign and local victims in 2004 and 2006, 
respectively.  Under the SOPs, when police or social workers 
suspect that someone is a trafficking victim, a KPS THBS 
officer must fill out a basic data form and call a victim's 
advocate from the Ministry of Justice Victims' Assistance and 
Advocacy Unit (VAAU).  Victims' advocates assist all 
trafficking victims with legal advice and support from 
identification through reintegration.  Victim's advocates 
also give victims information on medical and psychosocial 
support services available to them.  In the case of minors, 
social workers from the MLSW's Center for Social Work (CSW) 
must be present for any questioning of the victim.  They 
assist from identification through reintegration. 
 
¶109. (U) UNMIK Regulation 2001/4 protects trafficking victims 
from being charged with prostitution or illegal entry, as 
well as from being deported.  It also provides for review of 
requests for refugee status and for approval of residency 
permits, if appropriate.  Victims who do not wish to accept 
assistance are released, but they may be subject to re-arrest 
and deportation if they continue to work as prostitutes. 
 
¶110. (U) All trafficking victims are accorded shelter and 
access to legal, medical and psychological services.  Most 
medical and psychological services are provided through the 
shelters.  Foreign victims who wish to return to their 
countries of origin also have a right to IOM repatriation 
assistance. 
 
¶111. (U) The Ministry of Justice runs an Interim Security 
Facility (ISF) funded by Kosovo's central budget and 
supervised by Ministry of Justice Victims, Assistance and 
Advocacy Unit (VAAU) staff.  It provides temporary shelter, 
medical care, clothing, pocket money, counseling, educational 
assistance, recreational activities, and other services to 
victims while they consider whether to be repatriated or wait 
to testify against traffickers in criminal proceedings.  The 
average stay in the ISF is three nights and only the highest 
risk victims would normally stay longer.  Victims are 
generally not permitted to stay in the ISF for more than six 
months. 
 
¶112. (U) Aside from the ISF, the PISG relies heavily on 
foreign donors to operate shelters and services offered to 
trafficking victims.  Hope and Homes operates two shelters 
and an assisted living project for trafficking victims. 
Although it is not desirable because of the special needs of 
trafficking victims, domestic violence shelters also 
occasionally accept trafficking victims on an emergency 
basis.  The Center for Protection and Prevention of Victims 
of Trafficking in Human Beings (PVPT), which recently closed 
its doors because of insufficient funding and threats 
received after its location was compromised, is expected to 
reopen in March 2007 thanks to a donation from OSCE that 
 
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includes re-programmed U.S. Government funds.  These shelters 
usually assist victims for no more than six months. 
 
¶113. (U) Hope and Homes narrowly averted shutting its doors 
in February 2007 when the MLSW agreed to fund it at the 
previous year's level until a tender for shelter services 
could be published and competed.  Hope and Homes receives a 
large portion of its budget from the MLSW and was counting on 
the MLSW money for its 2007 operations.  The Hope and Homes 
and PVPT funding issues highlight the precarious long-term 
future of shelters in Kosovo. 
 
¶114. (U) Although data collection is improving, exact numbers 
of trafficking victims in Kosovo's shelters are not 
available.  CRS reported that during calendar year 2006 PVPT 
assisted 21 victims, while Hopes and Homes for Children 
assisted 5, Woman Wellness Center in Peja 2, Liria in Gjilan 
11, and Safe House Gjakova 8. 
 
¶115. (U) Question 30 (B): Does the government provide funding 
or other forms of support to foreign or domestic NGOs for 
services to victims?  Please explain. 
 
¶116. (U) The MLSW funds, in part, shelters focusing on 
domestic trafficking victims.  In addition, in several 
cities, the municipalities provide rent-free space to house 
shelters. 
 
¶117. (U) Question 30 (C): Do the government's law enforcement 
and social services personnel have a formal system of 
identifying victims of trafficking among high-risk persons 
with whom they come in contact (e.g. foreign persons arrested 
for prostitution or immigration violations)? Is there a 
referral process in place, when appropriate, to transfer 
victims detained, arrested or placed in protective custody by 
law enforcement authorities to NGO's that provide short- or 
long-term care? 
 
¶118.  (U) KPS THBS interviews potential victims of 
trafficking and fills out a basic data form, which is 
designed to capture relevant information once to prevent the 
victim from being re-victimized by numerous interrogations. 
Upon identification, the standard operating procedure (SOP) 
kicks in and a victims, advocate is called.  As mentioned 
earlier, a social worker will also be called if the victim is 
a minor.  Victims, advocates or social workers will refer 
victims to other services available to them, including 
shelter and reintegration programs. 
 
¶119. (U) Question 30 (D): Are the rights of victims 
respected, or are victims treated as criminals?  Are victims 
detained, jailed, or deported?  If detained or jailed, for 
how long?  Are victims fined?  Are victims prosecuted for 
violations of other laws, such as those governing immigration 
or prostitution? 
 
¶120. (U) According to IOM and others involved in 
counter-trafficking work in Kosovo, victims, rights are 
generally respected.  Nevertheless, some problems have been 
reported.  IOM says that some victims are jailed or deported. 
 According to IOM, the jail terms depend on the penal code 
but may be one month or more.  Post believes these incidents 
are the result of women refusing to admit to KPS THBS that 
they are trafficking victims.  KPS THBS has complained of 
this on numerous occasions.  Since prostitution is illegal 
and constitutes grounds for deportation, KPS THBS say they 
have little choice when victims are caught for prostitution 
and vehemently deny being victims. 
 
¶121. (U) Other problems reported included victims not being 
permitted to give statements in private due to the lack of 
private interview rooms in police stations and victims who 
wished to remain anonymous coming into contact with their 
traffickers in courts due to lax security procedures. 
 
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¶122. (U) Question 30 (E): Does the government encourage 
victims to assist in the investigation and prosecution of 
trafficking?  May victims file civil suits or seek legal 
action against the traffickers?  Does anyone impede the 
victims' access to such legal redress?  If a victim is a 
material witness in a court case against a former employer, 
is the victim permitted to obtain other employment or to 
leave the country pending trial proceedings?  Is there a 
victim restitution program? 
 
¶123. (U) The VAAU reports that victims are not pressured to 
assist in investigation and prosecution of traffickers, but 
that systems are in place to allow them to make recorded 
statements with their faces hidden and voices disguised. 
Victims, advocates are with them from identification through 
reintegration and explain their rights every step of the way. 
 
¶124. (U) In addition to testifying against their traffickers, 
victims may file civil suits or seek legal action against 
their traffickers.  According to IOM, no one impedes their 
rights to such legal redress.  Victims who are material 
witnesses in court cases against former employers are 
permitted to obtain other employment or leave the country 
provided they share their contact details with the court. 
 
¶125. (U) IOM reports that there is a victim restitution 
program, but it is in its initial phase. 
 
¶126. (U) Question 30 (F): What kind of protection is the 
government able to provide for victims and witnesses?  Does 
it provide these protections in practice?  What type of 
shelter or services does the government provide?  Does it 
provide shelter or housing benefits to victims or other 
resources to aid the victims in rebuilding their lives? Where 
are child victims placed (e.g. in shelters, foster-care, or 
juvenile justice detention centers)? 
 
¶127. (U) The PISG is able to provide 24-hour protection to 
victims and to allow them to give anonymous testimony if they 
decide to become witnesses in cases against their 
traffickers.  KPS THBS officers do risk assessments of all 
trafficking victims.  They refer the high-risk victims to the 
Ministry of Justice-run Interim Security Facility (ISF), a 
high security shelter that offers 24-hour protection but does 
not allow victims to come and go as they please.  They refer 
the low- and medium-risk victims to private shelters, which 
allow some freedom of movement and are generally more 
conducive to longer stays and reintegration. 
 
¶128. (U) Minors may be sent to the ISF or a shelter for 
minors depending on their risk level, reintegrated with their 
families, or placed in foster-care if they come from abusive 
families.  Local Centers for Social Work handle the minors, 
cases, and report directly to the Ministry of Labor and 
Social Welfare.  While the foster care option exists, UNICEF 
complained of a lack of opportunities for girls who do not 
want to return to their families.  They said some end up back 
with the dysfunctional families that contributed to their 
initial trafficking, thus increasing their potential for 
re-victimization. 
 
¶129. (U) The PISG provides some reintegration services in 
cooperation with international organizations and NGOs, but 
these are limited and are mostly offered through the 
shelters.  They include health care, counseling, education, 
clothing, pocket money and employment assistance.  ILO 
reports that social workers are not always aware of what is 
available to the victims.  They did a project in 2006 to map 
available services to try to improve the situation. 
 
¶130. (U) Question 30 (F): Does the government provide any 
specialized training for government officials in recognizing 
trafficking and in the provision of assistance to trafficked 
 
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victims, including the special needs of trafficked children? 
Does the government provide training on protections and 
assistance to its embassies and consulates in foreign 
countries that are destination or transit countries?  Does it 
urge those embassies and consulates to develop ongoing 
relationships with NGOs that serve trafficked victims? 
 
¶131. (U) The PISG trains government officials and 
anti-trafficking partners on recognizing trafficking and 
providing assistance to victims, including minors, mostly in 
cooperation with its anti-trafficking partners in the NGO and 
international organization communities.  The PISG and its 
partners are currently training social workers, victims, 
advocates and KPS THBS officers on the standard operating 
procedures (SOPs) for dealing with victims.  The SOPs for 
local victims were adopted in March 2006 and the existing 
SOPs for foreign victims were revised and updated in 2006. 
Only Pristina is left, and the training is likely to be 
completed in March 2007. 
 
¶132. (U) KPS THBS HQ and regional officers also give numerous 
trafficking-related trainings and presentations.  In 2006, 
they gave 10 training sessions to KPS recruits and officers 
attending investigations techniques courses, 9 training 
sessions to Border/Boundary Police officers, and 6 training 
sessions to investigators of other units. 
 
¶133. (U) Finally, the Kosovo Judicial Institute offers 
trafficking-related training to judges and prosecutors. 
 
¶134. (U) Kosovo is not a sovereign state, and therefore does 
not have embassies and consulates. 
 
¶134. (U) Question 30 (H): Does the government provide 
assistance, such as medical aid, shelter, or financial help, 
to its repatriated nationals who are victims of trafficking? 
 
¶135. (U) The VAAU reports that the PISG does provide 
assistance to repatriated Kosovars who are trafficking 
victims.  If they are placed in a shelter, they benefit from 
the same services available to victims identified in Kosovo. 
IOM reports that there is, however, no other support for 
victims once they leave the shelter.  In the case of minors, 
social workers are involved with family mediation and school 
re-insertion and may point victims in the direction of other 
assistance. 
 
¶136. (U) Question 30 (I): Which international organizations 
or NGOs, if any, work with trafficking victims?  What type of 
services do they provide?  What sort of cooperation do they 
receive from local authorities?  NOTE:  If post reports that 
a government is incapable of assisting and protecting TIP 
victims, then post should explain thoroughly.  Funding, 
personnel, and training constraints should be noted, if 
applicable. Conversely, the lack of political will to address 
the problem should be noted as well. 
 
¶137. (U) While many international organizations and NGOs work 
on the trafficking issue, IOM is the only one working 
directly with victims.  Hope and Homes for Children and PVPT 
were originally international NGOs, but have since spun off 
and become local NGOs. 
 
¶138. (U) For foreign victims, IOM provides: case screening 
and management, psycho-social counseling inside shelters or 
referrals for outside psychiatric and psychological 
assistance, medical assistance, in-depth needs assessments, 
travel arrangements, travel documents for victims whose 
passports have been confiscated by traffickers, travel 
supplies and reinstallation grants, organization of safe 
transportation to departure points (in cooperation with UNMIK 
and based on medical and security concerns), medical and 
accompanied minor escorts when necessary, and coordination 
with receiving IOM mission.  For local victims, it provides: 
 
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short- and medium-term sheltering in preparation for family 
reunification or independent living, family mediation (in 
cooperation with social workers when victims are minors), 
psychological counseling and psychiatric assistance, 
reintegration or emergency grants, material support for 
victims and/or families, housing and rental support, access 
to education, education-related expenses, vocational 
training, job placement (including for family members), 
awareness-raising and self-improvement activities, 
facilitation of relocation out of Kosovo for witnesses and 
their families, and monitoring and follow-up. 
 
¶139. (SBU) U.S. Office Pristina does not clear this cable for 
release to U.N. Special Envoy Martti Ahtisaari. 
KAIDANOW